New York State Offshore Wind Master Plan: Cultural Resources Study
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New York State Offshore Wind Master Plan Cultural Resources Study NYSERDA Report 17-25h December 2017 NYSERDA’s Promise to New Yorkers: NYSERDA provides resources, expertise, and objective information so New Yorkers can make confident, informed energy decisions. Mission Statement: Advance innovative energy solutions in ways that improve New York’s economy and environment. Vision Statement: Serve as a catalyst – advancing energy innovation, technology, and investment; transforming New York’s economy; and empowering people to choose clean and efficient energy as part of their everyday lives. Cover Image Source: Getty Images New York State Offshore Wind Master Plan Cultural Resources Study Final Report Prepared for: New York State Energy Research and Development Authority Prepared by: Ecology and Environment Engineering, P.C. New York, New York NYSERDA Report 17-25h December 2017 Notice This study was prepared by Ecology and Environment Engineering, P.C. (Contractor) in the course of performing work contracted for and sponsored by the State of New York through its agencies and public-benefit corporations (the State). The State and the Contractor make no warranties or representations, expressed or implied, as to the fitness for particular purpose or merchantability of any product, apparatus, or service, or the usefulness, completeness, or accuracy of any processes, methods, or other information contained, described, disclosed, or referred to in this study. The State and the Contractor make no representation that the use of any product, apparatus, process, method, or other information will not infringe privately owned rights and will assume no liability for any loss, injury, or damage resulting from, or occurring in connection with, the use of information contained, described, disclosed, or referred to in this study. No State or federal agency or entity has committed to any specific course of action with respect to the future development of offshore wind projects discussed in this study. This study does not commit any governmental agency or entity to any specific course of action, or otherwise pre-determine any outcome under State or Federal law. Any future offshore wind project will be required to meet all State and Federal permit or license approvals, including but not limited to under the Coastal Zone Management Act, prior to proceeding with development. The State makes every effort to provide accurate information about copyright owners and related matters in the documents we publish. Contractors are responsible for determining and satisfying copyright or other use restrictions regarding the content of reports that they write, in compliance with State policies and Federal law. If you are the copyright owner and believe a study has not properly attributed your work to you or has used it without permission, please email [email protected]. Information contained in this study, such as web page addresses, are current at the time of publication. ii Table of Contents Notice ........................................................................................................................................ ii List of Figures .......................................................................................................................... v List of Tables ............................................................................................................................ v Acronyms and Abbreviations .................................................................................................vi Executive Summary ............................................................................................................ES -1 1 Introduction ....................................................................................................................... 1 1.1 Scope of Study .............................................................................................................................. 3 1.2 Study Objectives ........................................................................................................................... 6 1.3 Regulatory Framework .................................................................................................................. 6 1.3.1 Federal Regulatory Framework ............................................................................................. 7 1.3.1.1 Section 106 of the National Historic Preservation Act .......................................................... 7 1.3.1.2 BOEM’s Section 106 Programmatic Agreement ................................................................ 10 1.3.1.3 National Environmental Policy Act ..................................................................................... 12 1.3.2 State Regulatory Framework .............................................................................................. 13 1.3.2.1 Section 233 of the New York State Education Law ............................................................ 14 1.3.2.2 Section 14.09 of the New York State Historic Preservation Act ......................................... 14 2 Data and Literature Review .............................................................................................16 2.1 Methods ....................................................................................................................................... 17 2.2 Summary of Findings .................................................................................................................. 19 2.2.1 Submerged (Underwater) Cultural Resources in the AoA .................................................. 19 2.2.1.1 Submerged Indigenous Archaeological Sites .................................................................... 20 2.2.1.2 Shipwrecks and Other Objects ........................................................................................... 23 2.2.1.3 Submerged Architectural or Built Resources ..................................................................... 33 2.2.2 Onshore (Terrestrial) Cultural Resources in the AoA ......................................................... 35 2.2.2.1 Architectural or Other Built Resources ............................................................................... 36 2.2.2.2 Landscapes and Seascapes .............................................................................................. 40 2.2.3 Traditional Cultural Properties ............................................................................................. 40 3 Sensitivity and Risk .........................................................................................................44 3.1 Sensitivity Assessment ............................................................................................................... 45 3.1.1 Sensitivity Assessment for the Offshore Portion of the AoA ............................................... 45 3.1.1.1 Submerged Indigenous Archaeological Sites .................................................................... 45 3.1.1.2 Shipwrecks and Other Objects ........................................................................................... 48 3.1.1.3 Submerged Architectural or Built Resources ..................................................................... 50 iii 3.1.2 Sensitivity Assessment for the Onshore Portion of the AoA ............................................... 50 3.1.2.1 Architectural or Other Built Resources ................................................................................ 51 3.1.2.2 Landscapes or Seascapes ................................................................................................. 52 3.1.3 Sensitivity Assessment for Traditional Cultural Properties in the AoA ................................ 53 3.2 Risk Assessment ......................................................................................................................... 54 3.2.1 Leasing ................................................................................................................................ 55 3.2.2 Construction ........................................................................................................................ 56 3.2.3 Operation ............................................................................................................................. 58 4 Guidelines and Best Management Practices .................................................................60 4.1 Federal Guidelines – BOEM ....................................................................................................... 61 4.1.1 BOEM’s Section 106 Programmatic Agreement ................................................................. 63 4.1.2 BOEM’s Guidelines for Cultural Resources Investigations ................................................. 66 4.1.3 BOEM’s Guidelines for Geophysical, Geotechnical, and Geohazard Surveys ................... 68 4.1.4 BOEM’s Guidance for Viewshed Modelling and Visual Simulations ................................... 70 4.1.5 BOEM’s Guidance for Identifying Tribal Cultural Landscapes ............................................ 71 4.2 State Guidelines – OPRHP ......................................................................................................... 72 4.3 State Permitting – NYSM ............................................................................................................ 74 4.4 Other Federal Guidelines ...........................................................................................................